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The Act of Congress of March 3, 1845, (effective July 1, 1845), established uniform (and reduced) postal rates throughout the nation, with a uniform rate of five cents for distances under 300 miles (500 km). However, Congress did not authorize the production of stamps until 1847, so postmasters made provisional issues. Prior to this time, rates were high and based, not on weight, but on the number of sheets in a letter. Any letter sent to a destination of 300 miles or less would cost 5¢ per half ounce. Any letter sent to a distance over 300 miles would cost 10¢ per half ounce. Letters for local delivery were charged 2¢.

While the Postmaster General was not authorized to issue postage stamps in the above-mentioned denominations, local postmasters issued their own stamps for use on outgoing mail. These early stamps and stamped envelopes are known as postmasters provisionals, and were valid only at the post office where they were issued. The 1845 Baltimore Postmaster Provisional was issued by James M. Buchanan, who issued both stamped envelopes and adhesive stamps. Buchanan placed his full signature on both the stamps and stamped envelopes he issued, and used both 5¢ and 10¢ denominations. This signed Buchanan Provisional on blued paper has a value, in today’s market, of between $60,000 to $100,000.